Mukherjee's Middle East Visit: Setting a New Template?

DECEMBER 2015 ISSUE NO. 119

P. R. KUMARASWAMY

ABSTRACT President Pranab Mukherjee's visit to Jordan, Palestine and Israel in October was different for its content and long-term implications. A careful analysis of his statements and speeches in Amman, Ramallah and Jerusalem indicates a new Indian template for its engagement with the Middle East. While some of his observations were a reiteration of the traditional Indian positions since the early 20th century, they also signal a more nuanced approach to the turbulent region.

INTRODUCTION

Indian President Pranab Mukherjee's visit to indicates a new Indian template for its Jordan, Palestine and Israel in October this year engagement with the Middle East. While some of has been radically different not only for its content his observations were merely a reiteration of but also for its long-term implications. positions taken historically by the Indian Presidential visits normally involve a solitary leadership since the early 20th century, a closer public speech before the official banquet. reading suggests that his engagements signal a However, during Mukherjee's six-day visit to the more nuanced approach to the turbulent region. Middle East, in addition to four briefings by his Further, the coverage itself of Mukherjee's delegation, the President made four public visit was novel and highly unprecedented. Over statements in Jordan, four in Palestine, and three the years, as overseas visits by Indian presidents in Israel, in addition to an extensive interaction have been nothing more than symbolic and with members of the media at the conclusion of ceremonial, they have evoked little interest within the visit. Besides, officials in the Presidential the Indian polity, including the media. Such visits delegation gave two media briefings in Jordan and are considered necessary to nurture high-level one each in Palestine and Israel. The Ministry for political contacts and reiterate India's interests External Affairs (MEA) also separately issued lists and commitments to these countries. Often, state of agreements signed in Amman, Ramallah and visits rarely make it to the media besides the Jerusalem. A careful analysis of these events president's departure from India and arrival

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ORF ISSUE BRIEF No. 119 • DECEMBER 2015 1 Mukherjee's Middle East Visit: Setting a New Template? home. Moreover, domestic preoccupations and of the Middle East responded to the regime increasingly crowded multilateral summits change in New Delhi. Hence, since 16 May 2014, provide a limited window for Indian prime many have observed and commented upon an ministers to travel abroad. In the twilight of his impending upsurge in Indo-Israeli relations; some term as prime minister, Manmohan Singh was expressed hope in view of the cold reception Israel forced to skip a few heads of government meetings received during the decade-long UPA rule when due to domestic preoccupations and compulsions. bilateral visits were less frequent and more Since assuming office, Prime Minister Narendra difficult to organise. Even National Day Modi has reinvented the concept of high-decibel celebrations failed to attract high-level foreign trips. However, the list of countries with representation from the UPA governments. which engagement is critical is far too long to be At the press conference called by External met only by the prime minister. Affairs Minister (EAM) Sushma Swaraj to mark the first anniversary of NDA rule on 31 May, she THE CONTEXT remarked, So far as the Prime Minister is concerned, he will also be visiting. Israel will also Foremost, President Mukherjee's visit to Israel be visited. No dates have been fixed. This then was undertaken with considerable political sparked off extensive media debates; some were calculations. This was a return visit from India happy, while many others had misgivings. after the visit of President and former Air Force Palestinians have had an unpleasant experience Chief Ezer Weizman in December 1996. Since with Modi. During the earlier NDA rule, their then, Israel has been seeking a visit by the Indian ambassador to India was recalled following his President. While K R Narayanan in the late 1990s unflattering remarks about the then Chief and early 2000s was reluctant, his successors were Minister Modi over the anti-Muslim riots. Unlike a little more willing but were blocked by the the 1982 incident involving the expulsion of the Congress-led UPA governments. Thus it has taken Israeli Consul in Mumbai over a media interview, nearly two decades to organise a reciprocal Indian this time, the Vajpayee government quietly asked visit to Israel. Palestinian Chairman Yasser Arafat to recall his Organising a presidential visit to Israel envoy. Over the years, many have rationalised the appears more sensible and feasible than a visit by BJP-Israeli bonhomie by attributing it to Prime Minister Modi. As the Lok Sabha votes were ideological convergence. being counted on 16 May 2014, an impending At the same time, political exchanges at the Indo-Israeli bonhomie became clear. As trends level of the Prime Minister would not be easy and indicated a landslide victory for the BJP, Israeli might send a wrong and unintended message. Prime Minister Benjamin Netanyahu became the While engagement with Israel is necessary, it first world leader to place a call to Narendra Modi should be nuanced; therefore, the visit by the and congratulate him for his election. As Chief President. As the media were anticipating the Minister of Gujarat, Modi had visited Israel in follow-up to Swaraj's May statement, the 2006 and both leaders met thereafter in New York President's visit to the region was announced. in September 2014. The fact that Netanyahu was the only leader Modi met bilaterally during the UN LOGISTICAL IMPERATIVES General Assembly session did not go unnoticed. During the funeral of former Singapore Prime Stand-alone visits to Israel or Palestine is wrought Minister Lee Kuan Yew in March 2015, Modi met with controversies and problems. Indeed, in the Israeli President Reuven Rivlin and has since been wake of the Oslo process, foreign leaders have exchanging messages, greetings and phone calls made it a point to visit both, especially when the with Netanyahu. This was in contrast to the situation in the Gaza Strip (then the general apathy and indifference with which much administrative headquarters of Arafat) was

2 ORF ISSUE BRIEF No. 119 • DECEMBER 2015 Mukherjee's Middle East Visit: Setting a New Template? relatively stable. Countries which did not have 1947 Indian positions on the Palestine question diplomatic relations with Israel, have coordinated would be seen as backsliding. their visit to the PNA-controlled areas; for Interestingly, the President's visit to Palestine example, the tacit Israeli approval facilitated the began in the Ben-Gurion airport near Tel Aviv. visit of Qatari Emir Hamad bin Khalifa al-Thani to Rather than taking the King Hussein Bridge the Gaza Strip in October 2012. The refusal of earlier known as the Allenby Bridge, Mukherjee then Pakistani Prime Minister Benazir Bhutto to took the aerial route from Amman and then drove 'coordinate' her visit to the Gaza Strip in 1994 led overland to reach Ramallah. This perhaps was a to its eventual cancellation. In June 2000, the response to the deteriorating security situation in then Home Minister and Deputy Prime Minister L the West Bank since the Jewish holiday season in K Advani attempted to maintain the balance but late September and the spate of knifing attacks in November 2014, Home Minister Rajnath Singh within the Green line. skipped Ramallah and visited only Israel. Unlike the Prime Minister, who represents the But treading the political tightrope is not the largest political party or block in the Lok Sabha, only imperative; there are logistical compulsions the President represents the entire nation and as well. Though recognised by a vast majority of hence Mukherjee's delegation included different countries, Palestine is not a sovereign entity in political parties and constituencies. President the legal sense of the term, as it does not have Mukherjee repeatedly harped on him being the control over entry into or egress from its Visitor of 114 institutions; the inclusion of territories. While the Palestinians control the Vice-Chancellors of three New Delhi-based Rafah crossings into Egypt, since the militant Central Universities and Director of the IIT- takeover of the Strip by Hamas in June 2007, the Kharagpur in the delegation was also noteworthy. other part of Palestine is outside the control of the The visit also took care of certain protocol issues. West Bank-centric PNA. The entry into the West In terms of exercise of powers, heads of state play Bank is controlled by Israel on all sides. Indeed, more pivotal roles in Jordan and Palestine than during the UPA era, the junior EAM and Indian Union Muslim League leader E Ahamed visited their prime ministers: King Abdullah-II and Ramallah without meeting any Israeli leaders but Mahmud Abbas are the principal decision-makers tacit Israeli acquiescence was necessary. Partly to and their cabinets play a secondary role. The avoid this logistical challenge, India has been situation is reverse in Israel, where the President including Jordan in some of its political occupies a largely ceremonial position. Thus in engagements with Israel and Palestine. The visit two of the three countries, Mukherjee's hosts and of EAM S M Krishna in January 2012, for interlocutors represent the real power centres. example, began in Jordan before he proceeded to This would not have been the case had Modi Palestine and Israel. undertaken the visit and his meetings with The scheduling of Mukherjee's October visit is Abdullah and Abbas would have remained mere also interesting. The three-nation visit began in courtesy calls. Though he represents the entire Jordan (10-12 October), then moved to Palestine nation, Mukherjee is not the decision-maker and (12-13 October), and ended in Israel (13-15 all his major statements and pronouncements, October). Given the traditional Indian position, especially on foreign-policy matters, are approved any other sequence of visits would have placed by and reflect the sitting government. Mukherjee Israel at great disadvantage, virtually pushing the was thus only articulating Modi's policies and clock backwards on its relations with India. priorities. Flagging the past is logical in Palestine and reflects India's traditional position but vis-à-vis COMMON STRANDS Israel the focus has to be the future. After hailing the trajectory of bilateral relations since 1992 in Coinciding with the Jewish holiday season, since Israel, the Indian President going back to pre- late September, Jerusalem has witnessed a spate

ORF ISSUE BRIEF No. 119 • DECEMBER 2015 3 Mukherjee's Middle East Visit: Setting a New Template? of knifing attacks, increasing tension in the city. He addressed the parliaments in Jordan and Partly due to this growing anger and Israel, but not in Palestine. This is primarily due to disappointment, on 30 September, President the deep divisions within the Palestinian society Abbas told the UN that the Palestinians will not and the political divide between the Hamas-ruled remain the only ones committed to the Gaza Strip and Fatah-dominated PNA rule in the implementation of (Oslo) agreements, while West Bank. His engagements in Israel began with Israel continuously violates them. Mukherjee the customary visit to Yad Vashem where he undertook the visit despite such a climate, in the offered prayers in memory of all the men, women process setting a precedent. This tension partly and children commemorated in the Holocaust explains why he went to Ramallah from the Ben- memorial. Likewise, unlike in Jordan or Palestine, Gurion airport near Tel Aviv instead of taking the in Israel he met the leader of opposition, Issac Allenby Bridge across the Jordan River. Herzog and his colleagues. One could notice certain common features, In all the three places, he made fleeting contents and strands in Mukher jee's references to Mahatma Gandhi, but with different engagements in Jordan, Palestine and Israel. As emphasis. In Jordan, he referred to the he frequently reminded his three interlocutors, Mahatma's November 1938 statement wherein his was the very first visit by an Indian he had observed: Palestine belongs to the Arabs President. Till date, none of these countries had in the same sense that England belongs to the hosted an Indian prime minister, including English and France to the French. In his Jordan, with which India established diplomatic engagements in Ramallah, Mukherjee reminded relations in 1950. The need for 'balance' was his audience that Mahatma Gandhi had raised reflected in many ways. In all his public the strongest voice in support of the pronouncements, Mukherjee harped on the Palestinians. The visit coincided with the naming positive aspects of the bilateral relations and of streets after Gandhi. The absence of a similar eschewed any negative vibes. move in Israel indicates the tension between the Mukherjee periodically reminded his host two countries over the Mahatma's perceived lack about him being the 'Visitor of 114 central of sympathy towards Jewish nationalism. Yet, he institutes of higher learning' and that his told the Israeli Parliament, Knesset, I was delegation included the Vice-Chancellors of three pleasantly surprised to learn that Mahatma Delhi-based Central Universities. Partly reflecting Gandhi is the only world leader whose photograph this and partly as a coordinated balancing, had been kept by former Prime Minister David premier institutions conferred honorary Ben-Gurion in his desert home. doctorates upon the Indian Presidentthe Both in Jordan and Palestine, Mukherjee Amman-based University of Jordan, East reiterated the decade-old Indian position Jerusalem-based al-Quds University in Palestine, regarding the two-state solution, namely, a and the Hebrew University of Jerusalem in Israel. He invited all his hosts to visit India and in Israel, negotiated solution regarding a sovereign, the invitation was extended to Prime Minister independent, viable and united State of Palestine, Netanyahu. with East Jerusalem as its capital, living within At the same time, one could notice significant secured and recognized borders. In Amman, he and nuanced differences in his engagements and also added: We have called upon both sides to statements. In Jordan and Palestine, Mukherjee exercise restraint and work towards a paid rich tributes to personalities who are held comprehensive resolution of the Palestinian dear by his hostsKing Hussein in Amman and issue and in Ramallah, he said that India would Arafat in Ramallah. Conscious of the deep political like to see the people of Palestine living ... side by divisions within Israel, he did not go beyond side and at peace with Israel. Interestingly, he recognising the vision of the 'Founding Fathers'. mentioned 'East Jerusalem' as the capital of the

4 ORF ISSUE BRIEF No. 119 • DECEMBER 2015 Mukherjee's Middle East Visit: Setting a New Template? future Palestinian state in his statements in achieved. This is perhaps the most defining Amman and Ramallah, but not in Jerusalem. outcome of Mukherjee's visit and paves the way Declaring East Jerusalem as the capital of the for more substantial interaction when Modi visits future Palestinian state is problematic as it Israel. precludes a negotiated settlement and prejudges Both in Jordan and Israel, Mukherjee the outcome. The Jerusalem question has been acknowledged the help of these countries during the most complex aspect of the Arab-Israeli critical moments. The former was helpful when conflict and any unilateral Indian endorsement of India was forced to evacuate 150,000 of its Palestinian claims would only make matters citizens who were stranded in Kuwait following worse. Moreover, since 1966, when the states of the Iraqi invasion of that country in 1990. It Haryana and Punjab were created, India has been provided similar transit facilities when Indians unable to resolve the status of Chandigarh. were fleeing Iraq in 2014 after the onset of ISIS. In Having had a bitter experience over the contested his Knesset speech, he acknowledged Israel capital, it would be wiser on India's part to rushing critical defense supplies when India eschew prejudging the final outcome on required them most urgently in 1999. Jerusalem. Emphasis on the negotiated Partly to respond to domestic critics that India solution leading up to the formation the has abandoned the Palestinians, Mukherjee Palestinian state rules out any unilateral moves listed India's efforts at the forefront in on either side. Moreover, in Amman and promoting the Palestinian cause. These included: Ramallah, he reminded the Palestinians to co- exist with Israel. However, similar sentiments Voting against the partition plan in were missing in his engagements with the Israeli November 1947; leaders. Indeed, the 'P' word was absent in all his Recognition of the PLO as the sole and public statements in Israel. legitimate representative of the Palestinian Mukherjee's State visit to Jordan and people in 1974 (sic); Palestine clearly addressed the issue of protocol. Being the first non-Arab country to While Mukherjee holds a ceremonial position, his recognize the State of Palestine in host heads of state are also the principal decision- November 1988; makers. Further, if Abbas's Prime Minister Rami Co-sponsoring the UN General Assembly Hamdallah has been struggling to form a cabinet, resolution recognizing the right of the Jordanian monarch has adopted a revolving Palestinians to self-determination in door policy vis-à-vis his head of government. August 1998; Indeed, since Abdullah became the King in Voting in favor of the UN General Assembly February 1999, Jordan has seen as many as five resolution against the construction of the prime ministers. Prime Minister Modi does not separation wall by Israel in October 2003; have correspondingly strong decision-making Voting in favor of full membership of counterparts in Jordan or Palestine and his Palestinian in the UNESCO in October meetings with Abdullah or Abbas would be 2011; symbolic and courteous, devoid of substance. Spearheading the campaign for recognition Mukherjee's visit to Israel, on the other hand, of Palestinian statehood by the UN in 2012; signaled India's willingness to engage with Israel; Supporting the UN resolution flying the while the Prime Minister largely represents the Palestinian flag at the UN headquarters in ruling party or coalition, the President is seen as September 2015. representing the entire nation and hence Mukherjee's visit signaled a more wholehearted Besides these political moves, while speaking and non-partisan Indian embrace of Israel than at the University of Amman, Mukherjee referred what a prime ministerial visit could have to India's commitments to provide budgetary,

ORF ISSUE BRIEF No. 119 • DECEMBER 2015 5 Mukherjee's Middle East Visit: Setting a New Template? economic and developmental assistance to with the other Chair being located in the Tel Aviv Palestine. He also listed India's past, ongoing and University. planned moves in support of the Palestinians: The signing of academic MoUs reflected an interesting pattern. While eight academic MoUs Over the years, around 12,000 Palestinians were signed in Israel and six in Palestine, Jordan have graduated from Indian universities; witnessed the signing of 10 academic MoUs. JNU Under the ITEC scholarship programme, and Delhi University signed agreements with all 760 Palestinians have been provided the three countries. While ground realities training in various areas; precluded IIT-Kharagpur from entering into any To increase the number of Palestinians agreements with Palestine, political compulsions under the ITEC programme to 100 per appear to have prevented Jamia Milia Islamia annum; from seeking any agreements with higher Establishment of Jawaharlal Nehru Library educational institutions in Israel. Though a at the Al-Azhar University in the Gaza City Central University, Jamia sought to retain its in 2000; minority character and eschewed any academic Mahatma Gandhi Library-cum-Student cooperation with the Jewish State. Activity Centre at the Palestine Technical Jordan is emerging as a convenient venue for College at Deir al-Balah in the Gaza Strip in India to articulate its position regarding the 2000; Israeli-Palestinian issue. Mukherjee carefully Setting up of Jawaharlal Nehru Secondary avoided referring to Palestine during in his public School for Girls in Asira al-Shamaliya; statements in Israel and similarly he avoided To increase the number of ICCR referring to stronger ties with Israel while dealing scholarships to Palestinians from 10 to 25 with the Palestinians. Such a refrain appeared per annum; unnecessary in Amman and, speaking at the Budgetary support of US$5 million to the University of Jordan, he observed: Like Jordan, PNA; India's traditional support to the Palestinian Setting up of a techno park in Ramallah at an cause remains steadfast and unwavering while we estimated cost of US$12 million; pursue strong relations with Israel (emphasis Setting up of a Palestinian Institute of added). Mukherjee flagged a number of issues Diplomacy at the cost of US$4.5 million; that are critical for Jordan or endorsed its Providing equipment support to seven position. He hailed Jordan's willingness to be the Vocational Training Colleges in Palestine; safe haven to 1.4 million Syrian refugees despite Inauguration of Jawaharlal Nehru its own severe domestic constraints. He Secondary School for Boys in Abu Dees in empathised with the Hashemite anger and the West Bank in October 2015; revulsion at the brutal killing of Jordanian pilot Setting up of the India-Palestinian Centre Muath al-Kasabeh in January 2015 by the ISIS. for Excellence in ICT and Innovation in Gaza Recognising Jordan's non-permanent at the cost of US$1 million; membership of the Security Council, India Support for a PhD programme between flagged its demand for reforming the UN and the Birzeit University and JNU at the cost of need to conclude the Comprehensive Convention US$21,670 for five years. on International Terrorism pending since mid- 1990s. Indeed, while it condemned terrorism and The five projects announced during his visit extremism, the statements against terrorism would cost India US$17.39 million. In addition, were stronger and more vocal in Jordan than in the President also announced the setting up of an other places. Mukherjee attributed the root cause India Chair in the Al-Quds University; this would of terrorism in the region to the humiliation that be the second such Chair in the entire Middle East has been suffered over the years by Palestinians

6 ORF ISSUE BRIEF No. 119 • DECEMBER 2015 Mukherjee's Middle East Visit: Setting a New Template? and their statelessness. Such an observation in described the relations as excellent and declared Ramallah would have been controversial. that India's consistent policy has been to build Recognising the frontline role played by Jordan strong, substantive and mutually beneficial in fighting various extremist groups, India relations with Israel. Not shying away from the identified counter-terrorism and defense sector military dimension of the relations, he stated that as the key areas of cooperation. Until recently, India remembers, with gratitude, the help that counter-terrorism cooperation did not go beyond the Israeli government provided in rushing Israel. However, the emergence of ISIS and similar critical defense supplies to India when we needed groups has compelled India to expand such them most urgently in 1999. Until now, such an cooperation with countries like Jordan, Saudi open admission of Israeli help has not been made Arabia and the UAE. by the Indian government. Mukherjee expressed interest in capitalising Mukherjee repeatedly highlighted the on Jordan's FTA agreements with the EU and the democratic credentials of both countries and US. However, his desire to double the bilateral their composite culture of different political trade from US$2 billion to US$5 billion by 2025 parties and constituencies. In spite of being exposes the limited basket of commodities traded separated by two seas, both countries are between them. Partly to boost trade, India offered joined by their common belief in the power of a US$100-million credit line and increased diversity and democracy. Reflecting the general scholarships to Jordanian students from 25 to 50 mood in Israel, he reminded his audience under 200 training programmes. Keeping in tune whenever the Noble Prizes are announced, we with the NDA government's policy of reaching out often see names of scientists who have studied in to Indian communities abroad, the President the Hebrew University or Technion. As friends of addressed Indian Community and Friends of Israel, we rejoice in your success. Though our India in Amman. Around 10,000 Indians are countries travelled different paths during the employed in about 20 textile factories owned by Cold War, Indians always appreciated Israeli Indian companies or in the construction industry. innovation in the fields of agriculture, the kibbutz The Indian investment in Jordan is estimated at system and the remarkable achievements of your US$300 million. The US$640-million Jordan- scientists and engineers. India Fertilizer Company (JIFCO) was In continuation of his visit to Yad Vashem to incorporated in March 2008 and once pay homage to victims of Holocaust, Mukherjee operational, it would produce 1,500 tonnes of registered Indian admiration for the will and Phosphoric Acid per day, which would be shipped resolve with which Jewish people have raisen to India to meet India's food security needs. As from the depths of unspeakable suffering and part of its corporate social responsibility, during deprivation with a strong spirit and built their Mukherjee's visit, it was announced that JIFCO nation to make it what it is todaya thriving, would give US$100,000 to the Queen Rania trust progressive and prosperous society. for social projects. He also traced the parallel paths travelled by both the countries. In the 20th century, he A BREAK FROM THE PAST observed, our two nations came into being through the trauma of conflict, division and A number of observations made by President human sufferings. Both countries weathered Mukherjee would have been controversial and many challenges of nation building because their hotly debated had they been made by Prime leaders kept faith in democracy, their belief in Minister Modi. One can identify three such the transformative power of education and statements. science as well as their achievement of strong Recognising the positive trajectory of the and vibrant democracies are committed to the relations with Israel since 1992, Mukherjee vision of our Founding Fathers.

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However, what could be the most beginning, the socialist Zionists led by Ben- controversial aspect of his speech before the Gurion were more favourably inclined and Knesset was his observation: Both India and worked with the Mandate authorities towards Israel made parallel struggles against the British. realising the Jewish demand for a homeland as This is radically different from the traditional enshrined in the Balfour Declaration. That Indian position vis-à-vis Jewish nationalism. bonhomie ended with the publication of the Since the Balfour Declaration of November 1917, MacDonald White Paper in 1939 that announced led by Mahatma Gandhi, Indian nationalists the British disengagement from the Balfour criticised the Jewish demand for a homeland Declaration. Thus, as they were appreciative of through the anti-imperialist prism. Gandhi's the British efforts against Nazi Germany in disapproval of the Zionist aspiration was Europe, the socialist Zionists joined others in primarily directed at the movement relying on the fighting the British in Mandate Palestine. British to realise its objectives. As Nehru The UN approval of the partition plan was rhetorically asked the Zionist emissary Immanuel followed by the unilateral Declaration of Olsvanger in September 1936: I cannot tolerate independence literally hours before the this imperialism in India or Palestine and the departure of the last British soldier from question I ask everyone is whether he stands for Palestine. Yet, until now, no Indian government this imperialism or against it. Thus, while the has admitted to the parallel struggle against the Mahatma advised the yishuv to abandon relying British. Such an observation, if made by Modi, on British bayonets, Nehru demanded that would have evoked criticism of revisionism and Zionists prove their credentials by siding with the repudiation of the Gandhi-Nehru legacy towards anti-imperialist struggle of the Arabs. Palestine. Since it came from the President, a While the Revisionist Zionism led by Ze'ev former member of the Congress party, no one Jabotinsky were sceptical of the British from the even bothered to notice.

ABOUT THE AUTHOR Prof. P R Kumaraswamy teaches Contemporary Middle East in Jawaharlal Nehru University, New Delhi. He is the author of India's Israel Policy (Columbia University Press, 2010) and Historical Dictionary of the Arab-Israeli Conflict (Scarecrow Press, 2015). (On Twitter: @kumaraswamyJNU).

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